Building Blocks and Strategies for Agriculture Water Management Policy Lessons from Modernization Programmes in Asia

Transcription

1 1 of 40 Building Blocks and Strategies for Agriculture Water Management Policy Lessons from Modernization Programmes in Asia About the FAO Policy Learning Programme This programme aims at equipping high level officials from developing countries with cutting-edge knowledge and strengthening their capacity to base their decisions on sound consideration and analysis of policies and strategies both at home and in the context of strategic international developments. Related resources See all material prepared for the FAO Policy Learning Programme See the FAO Policy Learning Website:

2 2 of 40 Building Blocks and Strategies for Agriculture Water Management Policy Lessons from Modernization Programmes in Asia By Daniel Renault, Senior Irrigation Management Officer Water Development and Management Unit, Land and Water Development Division (NRL), FAO, Rome, Italy of the FOOD AND AGRICULTURE ORGANIZATION OF THE UNITED NATIONS About EASYPol The EASYPol home page is available at: This presentation belongs to a set of modules which are part of the EASYPol Resource package: FAO Policy Learning Programme : Specific policy issues: Natural resource management, Water EASYPol is a multilingual repository of freely downloadable resources for policy making in agriculture, rural development and food security. The resources are the results of research and field work by policy experts at FAO. The site is maintained by FAO s Policy Assistance Support Service, Policy and Programme Development Support Division, FAO.

3 3 of 40 Introduction The management of irrigation systems is notoriously performing at lower level than what was expected. Irrigation Management is increasingly complex : more diversified service to users - competition for water cost effectiveness. Modern and highly performing management requires not only to apply adapted techniques but also a conducive institutional and political environment for which capacity building programmes are required. Balancing flexibility to adjust for project specificities and high consistency at national level.

4 4 of 40 Objectives This presentation : illustrates the practical implementation of an agricultural water management policy. presents two contrasting examples from South Asia.

5 5 of 40 National strategy for improvements and investments Any National strategy to implement advanced agricultural water management will require: A perspective on natural resource management A vision of the natural resource management A vision of the macro-economical context in agriculture and water sectors A set of objectives assigned to irrigated agriculture and irrigation management Clear identification of requirements for (needs) and means (local and national) that have to be mobilized to raise the know how and the capacity Monitoring and Evaluation of the performance

6 6 of 40 Major goals or objectives for a national strategy Build the internal expertise Capitalise the knowledge Raise the technological and managerial capacity for modern management Mobilize the national training capacity Mobilize and raise the research capacity to investigate and M&E technical options Mobilize the Policy and financial resources Coordinate the M&E of the programme Ensure unrestrained circulation of knowledge and information Favour exposure and good communication with the outside world

7 7 of 40 Building process and issues in agriculture water management THE BUILDING BLOCKS TYPOLOGY RAP MASSCOTE CAPACITY BUILDING THE BUILDING PROCESS TOP DOWN Policy is discussed and set at national level: the KEY DETAIL is How to make it working? e.g. NEPAL BOTTOM UP local management issues and opportunities induce POLICY issues and changes ex Karnataka INDIA The main issues in agriculture water management LOW PERFORMANCE in Irrigation management REASONS Lack of focus on the details Lack of engineering in the reforms Lack of managerial capacity [local level] Lack of transparency in the process Lack of consistent policy approach. The main challenges Increasing diversity Increasing complexity

8 8 of 40 Two possible approaches TOP-DOWN approach: NEPAL converting policies into practice! BOTTOM-UP approach: INDIA KARNATAKA From practice into policies!

9 9 of 40 BLOCK 1. BLOCK 1 Typology of Irrigation Systems

10 10 of 40 Typology of irrigation systems TYPE A TYPE B TYPE C TYPE D TYPE E Local project s Local projects

11 11 of 40 Large rice based irrigation system in South East Asia Two types of typology: the primary one distinguishes the macroeconomic context in which the system works, with 3 main classes and the secondary one was more a hydrology oriented typology. Context: Agriculture Focus : Early developing, rice dominant system Transition: Commercial agriculture, export & rice diversification Post Agriculture: Rice intensification and multi-purpose system Hydrology: Type 1: Type 2: Type 3: Type 4: Type 5: Reservoir-backed, gravity fed irrigation systems Off-river diversion irrigation systems Off-river pump irrigation systems Conjunctive groundwater-surface water system Integrated water management systems in the deltas Additional criteria: Urban-rural irrigation systems Source: FAO 2005

12 12 of 40 BLOCK 2. BLOCK 2 The Rapid Appraisal Procedure to diagnose irrigation management

13 13 of 40 The Rapid Appraisal Procedure (RAP) Provide a basis for making specific recommendations for modernization and improvement of water delivery service, identifying weaknesses and changes Provide a baseline for comparison of future performance after modernization Benchmarking for comparison against other irrigation projects

14 14 of 40 RAP outputs External indicators Examine inputs and outputs of the whole project (and constraints) Internal indicators Identify key factors related to water control throughout a project. Define level of water delivery service provided to users at all levels of the system Managers, operators, WUCS, farmers Examine specific hardware and management techniques and processes used in the control and distribution of water.

15 15 of 40 Example BHADRA = US$ 1700/ha 7,000 ch110 IWMI1. Output per cropped area ($/ha). 6,000 5,000 4,000 3,000 2,000 1,000 0 Lam Pao, Thailand Dez, Iran Guilan, Iran Seyhan, Turkey Majalgaon, India Dantiwada, India Bhakra, India Muda, Malaysia Kemubu, Malaysia Beni Amir, Morocco Office du Niger, Mali Rio Yaqui Alto, DR Coello, Colombia Saldaña, Colombia Cupatitzio, Mexico Rio Mayo, Mexico Cam Sun, Vietnam

16 16 of 40 Social order Social order" in the canal system operated by paid employees 0.5 Degree to which deliveries are NOT taken when not allowed, or at flow rates greater than allowed 1.0 Noticeable non-existence of unauthorized turnouts from canals. 0 Lack of vandalism of structures 0.3

17 17 of 40 Service to farmers (canal) Actual water delivery service to individual ownership units (e.g., field or farm) 1.1 Measurement of volumes 0 Flexibility 1 Reliability 1 Apparent equity 1

18 18 of 40 Actual and stated water delivery service to individual ownership units

19 19 of 40 Budgets Budgets 1.6 What percentage of the total project (including WUA) Operation and Maintenance (O&M) is collected as inkind services, and/or water fees from water users? Adequacy of the actual dollars and in-kind services that is available (from all sources) to sustain adequate Operation and Maintenance (O&M) with the present mode of operation. Adequacy of spending on modernization of the water delivery operation/structures (as contrasted to rehabilitation or regular operation) 0 2 4

20 20 of 40 Employees Employees 1.0 Training 1 Availability of written performance rules 1 Power of employees to make decisions 2.5 Ability of the project to dismiss employees with cause. 2 Rewards for ememplary service 0.0 Relative salary of an operator compared to a day laborer Mobility and Size of Operations Staff: Operation staff mobility and efficiency, based on the ratio of operating staff to the number of turnouts

21 21 of 40 Water User Associations Water User Associations 0.2 Percentage of all project users who have a functional, formal unit that participates in water distribution 0 Actual ability of the strong Water User Associations to influence real-time water deliveries to the WUA. Ability of the WUA to rely on effective outside help for enforcement of its rules 0 1 Legal basis for the WUAs 1 Financial strength of WUAS 0

22 22 of 40 Water scarcity in DBK LBC (1 crop/year) Limited areas under scarcity (one crop per year)

23 23 of 40 BLOCK 3 MASSCOTE: A methodology for developing a modernization plan for irrigation management Mapping systems and services for canal operation techniques

24 24 of 40 Plan for modernization monitoring & evaluation (10) INTEGRATING SOM OPTIONS (1) RAP (9) OPERATION IMPROVEMENTS/UNITS (8) DEMAND for OPERATION (2) CAPACITY & SENSITIVITY (3) PERTURBATIONS (7) MANAGEMENT UNITS (4) WATER ACCOUNTING (6) SERVICE TO USERS (5) COST of OPERATION

25 25 of 40 Multiple uses of water

26 26 of 40 Example of a critical issue: Canal lining! Questioning the rationale? Quality of work? Maintenance of canal lining? Management?

27 27 of 40 BLOCK 4 Capacity development The NRLW conceptual approach to Capacity Development

28 28 of 40 Means for capacity development

29 29 of 40 Strategic planning This is the beginning of a strategy development process for capacity development that includes: Diagnosis: identification of the gaps Definition of the goals Means Monitoring of performance

30 30 of 40 Means for capacity development Research Education & Training Networks (professionals)

31 31 of 40 TOP DOWN Approach Designing implementing strategy for water policy: NEPAL

32 32 of 40 Integrated Water Resource Management Integrated Water Resources Management is a process which promotes the coordinated development and management of water, land and related resources, in order to maximize the resultant economic and social welfare in an equitable manner without compromising the sustainability of vital ecosystems. Global Water Partnership

33 33 of 40 Irrigation Policy Nepal Background DOI primary institution for large and medium sized projects WUAs & local institutions for small systems Equal importance: new dev. & modernization Extension of services to marginal farmers Develop storage capacity

34 34 of 40 Irrigation policy Nepal (2003) Objectives: Expand year round irrigation capacity Develop institutional capacity of WUAs for sustainable management of existing systems Capacity building of technical human resources, farmers, water users and NGOs.

35 35 of 40 Irrigation policy Nepal [cont d] POLICY= 9 key points : 1. Legal authority for fees within DOI 2. Projects guided by IWRM principles to ensure water for all stakeholders 3. Modern management techniques for year round irrigation (reservoirs, groundwater, rainfall harvest) 4. Master plan for trans-basin 5. Priority to reservoirs with power production capacity 6. Equal priority for groundwater management/surface water 7. Water services should be evaluated quantitatively 8. Local institutions capacity development 9. Legal & institutional improvements to achieve the objectives, capacity development of irrigation staff.

36 36 of 40 Irrigation Policy - Nepal Our proposed FAO intervention aims to design: practical means to implement IWRM and to define: specific strategies to help vulnerable groups becoming real stakeholders strategies for DOI to become an operator of IWRM options for a real stakeholders governance of IWRM

37 37 of 40 Importance of an integrated approach Basic assumption = the continuity of water flow in the system Upstream and downstream Quantity & quality Different uses of water Positive and negative impacts (externality) Different sources of water Consistent with other natural resources Different users as stakeholders

38 38 of 40 BOTTOM UP Approach Policy issues emanating from field survey: KARNATAKA 4 Masscote exercises POLICY to enable cost-effective irrigation management and IWRM will be the focus of the 2 nd session in the afternoon

39 39 of 40 Conclusions A consistent fine tuning between policy and project levels Crafting policy with very practical insights from the field Reliable assessment of performance and issues are the foundations Ownership of policy change requires field study and capacity development for the practitioners

40 40 of 40 Further references Modernization of Irrigation Systems